L7//7 


THE 

STATE  TEACHERS  COLLEGE 

OF  COLORADO 


The 

Consolidation  of  Rural 

Schools 


THE  PRESENT  STATUS  OF  THE 
MOVEMENT 


PUBLISHT  QUARTERLY  BY  THE  BOARD  OF  TRUSTEES 
GREELEY,  COLO. 


BULLETIN  OF  THE  STATE  TEACHERS  COLLEGE 

OF  COLORADO 
SERIES  XI.  OCTOBER  1911  NO.  2 

ENTERD  ATTHE    POST  OFFICE,  GREELEY,  COLORADO,  AS  SECOND-CLASS  MATTER 


The 

Consolidation  of  Rural 
Schools 


THE  PRESENT  STATUS  OF  THE 
MOVEMENT 


In  all  publications  of  this  Institution  the  spelling  recommended  by   the 
Simplified  Spelling  Board  is  employd. 

WE  UBM«  OF  THE 

UHWERStW  OF  ILU^1SD    HUGH 

Dean  of  the  Training  Department 


4  THE  STATE  TEACHERS  COLLEGE, 

dent  to  the  growth  of  neighboring  cities  and  the  more  dense 
population  of  rural  districts, — all  these  tendencies  are  helping 
to  make  rural  life  different  from  what  it  was  even  a  generation 
ago.  If  the  school,  as  is  generally  admitted,  is  not  to  imitate 
the  cloister  in  its  seclusion  from  the  life  of  the  community  but 
is  rather  to  be  an  organic  part  of  that  life,  helping  to  stimulate 
and  to  vitalize  its  various  activities,then  surely  the  school  must 
at  least  keep  pace  with  the  general  trend  of  social  progress. 

To  lift  the  rural  school  to  its  true  place  in  the  community 
no  such  effectiv  means  have  been  found  as  the  plan  of  consol- 
idation. The  purpose  of  this  bulletin,  however,  is  not  so  much 
to  discuss  the  merits  of  this  plan,  which  are  generally  con- 
ceded, as  to  give  some  account  of  the  progress  of  the  movement 
and  especially  to  indicate  some  of  the  means  that  h'\ve  been 
found  most  effectiv  in  furthering  the  process  of  consolidation. 
The  material  here  presented  grew  in  the  main  out  of  a  letter 
of  inquiry  sent  to  the  departments  of  Education  of  the  various 
states  in  order  to  secure  material  for  a  report  on  this  subject 
to    a    local    educational    gathering.  This       material       was 

supplemented  by  later  correspondence  with  the  same  depart- 
ments. The  questions  askt  in  the  original  letter,  which  largely 
determind  the  sequence  of  topics  in  this  discussion,  were  as 
follows: 

1.  To  what  extent  are  the  rural  schools  consolidated  in  your 
State? 

2.  How  far  is  the  plan  proving  satisfactory? 

3.  What  are  the  chief  objections  on  the  part  of  rural 
school  patrons  to  consolidation? 

4.  What  means,  legislativ  and  otherwise,  have  been  found 
most  effectiv  in  securing  consolidation? 

Replies  to  these  inquiries  were  received  from  almost  all 
tiie  States  in  the  Union.  Much  additional  information  has  also 
been  generously  furnisht  by  a  number  of  the  State  Departments 
most  intimately  connected  with  this  work.  To  all  persons  who 
have  kindly  contributed  to  the  collection  of  this  data  the  thanks 
of  the  writer  are  most  cordially  given.  Much  of  the  material  is 
printed  in  the  hope  that  it  may  be  a  stimulus  to  this  movement 
both  in  our  own  and  other  states. 


GREELEY,  COLORADO.  5 

THE  EXTENT  OF  THE  MOVEMENT. 

Thirty-four  states  report  more  or  less  consolidation  alredy 
undertaken,   and   in    a   number   of   others    an   educational   oam- 
pair*  for  this   purpose  is    being   pland.     Consolidation     is   now 
widely  spred  over  the  country.     Starting  in  Massachusetts    the 
movement  first  covered  the  New  England  states  and  then  s'pred 
west  and  south.       Indiana  is  at  present  the  state  in  which  the 
greatest  work  has  been  done.       Activity  along  these  lines,  how- 
ever,  is   by   no   means   confined   to   the   eastern   portion   of   the 
country.       Northern   states,   such  as   Minnesota  and   the  Dako- 
tas,  have  made  commendable  progress;  upon  the  western  coast 
especially  in  Washington,  the  work  is   being  activly     pushed- 
and   many  Southern  educators  are  among  the  most  enthusiastic 
advocates  of  the  plan.       It  is  especially  interesting  to  note  the 
activity  that  is  being  manifested  in  many  states  where  no  con- 
solidation has  as  yet  been  effected.     The  following  statements* 
will  indicate  in  a  more  concrete  way  the  present  status  of  the 
movement: 

Alabama— We  have  barely  begun,  tho  we  are  talking  about 
it  and  preparing  the  minds  of  the  people  for  it. 

Arkansas— An  adequate  law  has  just  been  enacted,  and  the 
subject  is  being  thoroly  agitated. 

Illinois— We  have  twelv  consolidated  schools. 
Indiana— We  have  consolidated  schools  in  more  than  one- 
half  of  the  townships  of  the  state. 

Iowa— According  to  the  school  reports  available  from  this 
State  considerable  progress  has  been  made  in  the  consolidation 
of  rural  schools. 

Kansas— There  are  about  seventy  consolidated  districts  in 
this  State  and  over  forty  of  them  are  graded  schools. 

*These  statements  are  copied  in  the  main  from  the  corres- 
pondence of  some  member  of  the  Educational  Department  of  the 
various  States.  Occasionally  they  are  taken  from  the  publica- 
tions of  these  departments  or  are  based  upon  facts  supplied  by 
them. 


8  THE  STATE  TEACHERS  COLLEGE, 

THE  SUCCESS  OF  THE  PLAN 

More  important  than  the  number  of  consolidated  schools  is 
the  markt  favor  with  which  they  are  being  receivd  in  almost  all 
parts  of  the  country.  Rural  districts  that  give  the  new  school 
a  fair  trial  invariably  refuse  to  go  back  to  the  old  one.  Accord- 
ing to  the  extensiv  investigations  of  Mr.  George  W.  Knorr  of  the 
Department  of  Agriculture,  Washington,  D.  C,  95  per  cent  of  the 
patrons  of  consolidated  schools  are  enthusiastic  supporters  of 
the  plan.  In  view  of  the  fact  that  this  school  is  now  being  tried 
in  a  great  variety  of  situations — among  the  mountains  and  on 
the  plains,  in  the  colder  regions  of  the  North  and  in  parts  that 
have  almost  a  tropical  climate,  in  the  arid  portions  of  the  West 
where  the  roads  are  usually  dry  and  in"  the  muddiest  sections  of 
the  Middle  and  Southern  States — there  seems  to  be  sufficient 
accumulation  of  evidence  in  its  favor  to  demand  for  it  serious 
consideration  in  many  sections  of  our  own  State.  The  success  of 
the  school  can  no  doubt  best  be  gleand  from  the  statements  of 
persons  intimately  acquainted  with  its  work. 

Georgia. — In  the  main,  it  is  satisfactory. 

Idaho. — We  are  optimistic  as  to  the  outcome.  We  feel  that 
consolidation  of  rural  schools  will  do  much  to  make  country  life 
broader  and  better  and  more  desirable,  not  only  to  the  young 
people  who  attend  the  school  but  to  the  parents  as  well. 

Indiana. — The  plan  proves  to  be  satisfactory  in  all  communi- 
ties where  reasonable  effort  is  made  to  have  conditions  satis- 
factory. 

Iowa. — While  Iowa  has  but  few  consolidated  schools  they 
are  constantly  growing  in  favor  with  parents  and  pupils.  So  far 
as  I  am  aware  no  consolidated  school  in  this  State  once  estab- 
lisht  and  put  into  operation  has  ever  been  abandond. 

Kansas. — The  plan  is  entirely  satisfactory  in  every  way. 

Louisiana. — The  plan  is  universally  successful. 

Maine. — According  to  an  investigation  made  in  this  State  a 
few  years  ago  the  local  superintendents  were  almost  unanimous 
in  the  belief  that  better  educational  results  were  secured  by  the 
consolidated  school. 


GREELEY,  COLORADO.  9 

Michigan.— The  consolidated  plan  where  tried  is  very  satis- 
factory. 

Mississippi.— Every  experiment  with  consolidation  and 
transportation  in  Mississippi  this  year  has  been  successful,  and 
there  is  now  a  widespred  interest  in  the  movement  thruout  the 
State. 

Missouri. — In  every  instance,  as  far  as  we  can  determin,  the 
scnools  are  doing  finely  and  pleasing  the  people  of  their  communi- 
ties. 

New  Jersey. — The"  plan  is  being  extended  more  every  year. 

North  Dakota. — In  this  northern  climate  consolidation  may 
be  carried  on  successfully  where  it  will  not  be  necessary  to 
transport  the  pupils  too  great  a  distance. 

Oregon. — Very  little  complaint  is  made,  and  some  counties 
are  more  than  enthusiastic  about  it. 

South  Carolina. — Where  tried  it  is  satisfactory. 

Tennessee. — The  plan  so  far  as  we  have  been  able  to  work 
it  has  proved  eminently  satisfactory. 

Texas. — Consolidation  has  proved  entirely  satisfactory. 

Vermont. — Thus  far  the  system  has  proved  satisfactory. 

Washington. — The  plan  of  consolidation  has  proved  exceed- 
ingly satisfactory. 

West  Virginia. — As  far  as  I  have  made  investigations  this 
system  is  a  great  improvement  over  the  work  done  in  the  sing.e 
room  schools,  affording  the  advantages  usually  attributed  to 
consolidation. 

Wisconsin. — As  a  rule  the  plan  proves  satisfactory.  It  is 
rare  that  there  is  any  markt  disposition  on  the  part  of  any  per- 
sons residing  in  a  district  that  has  provided  for  transporting  the 
cn.idren  of  the  entire  district  to  return  to  the  old  system. 


10  THE  STATE  TEACHERS  COLLEGE, 

OBJECTIONS   TO  CONSOLIDATION 

The  following  are  typical  replies  to  the  inquiry  in  regard  to 
the  objections  to  consolidation  on  the  part  of  rural  school 
patrons: 

Alabama. — Some  hold  the  erroneous  view  that  a  poor  school 
near  home  is  more  to  be  desired  than  a  good  school  out  of  the 
community. 

Georgia. — The  roads  are  frequently  not  good.  Long  walks 
for  children  are  undesirable. 

Idaho. — The  only  serious  objection  that  I  have  herd  has  been 
the  increast  distances  from  the  more  remote  homes  in  the  dis- 
trict to  the  school  building. 

Illinois. — Some  do  not  like  to  give  up  the  little  school  close 
to  their  door;  others  object  to  having  their  children  carried  in 
a  wagon  with  other  children;  but  the  main  objection  is  the  added 
expense. 

Indiana. — The  distance  children  are  sometimes  hauld  is  too 
great,  or  the  team  is  driven  too  slowly,  or  immoral  persons  are 
permitted  to  act  as  drivers  of  wagons. 

Kansas. — The  objections  to  consolidation  are  usually  fanci- 
ful and  are  due  to  inertia  and  a  satisfaction,  in  a  way,  with  the 
traditional  system. 

Louisiana. — The  main  objection  has  been  bad  roads;  now, 
however,  the  people  of  the  state  are  thoroly  awake  to  the  ne- 
cessity of  good  roads  and  are  bilding  them  every  day.  This 
heips  the  consolidation  movement. 

Michigan. — The  chief  objection  to  consolidation  is  that  the 
children  are  obliged  to  leave  home  so  early  and  to  return  so 
late. 

Missouri. — There  are  no  well  defined  objections  to  consoli- 
dation. The  natural  conservatism  of  country  people,  especially 
in  communities  that  have  been  settled  for  years  and  have  be- 
come accustomd  to  the  existing  order  of  things,  and  the  fact 
that  we  have  as  yet  no  law  allowing  the  use  of  public  funds  for 
the  transportation  of  pupils,  account  for  the  smallness  of  the 
number  of  consolidated  schools  in  this  state. 


GREELEY,  COLORADO.  11 

North  Dakota. — In  this  climate,  the  distance  which  must  be 
ttaverst  is  a  very  material  factor. 

Nevada. — Loss  of  identity  and  of  local  convenience  and  con- 
trol. 

Tennessee. — If  the  school  has  been  in  the  community  for 
many  years,  there  is  a  sentiment  in  favor  of  its  continuance  that 
is  hard  to  overcome. 

Utah. — Opposition  usually  comes  from  school  trustees  who 
are  loath  to  give  up  their  offis  and  surrender  the  school  of 
the  district  to  the  supervision  of  those  who  live  elsewhere. 

Wisconsin. — The  chief  objections  on  the  part  of  rural  school 
districts  to  consolidation  is  that  portions  of  the  territory  unitod 
may  suffer  at  the  hands  of  the  stronger  central  portion  of  the 
district. 

While  a  number  of  objections  to  consolidation  exist  it  must 
not  be  supposed  that  people  who  have  tried  the  plan  are  dissat- 
isfied with  it.  On  the  contrary,  as  has  alredy  been  pointed  out, 
the  patrons  of  consolidated  schools  are  almost  unanimous  in 
their  favor.  The  objections  come  from  the  small  minority  of 
patrons  or  from  those  who  have  had  no  experience  with  such 
scnools.  Taking  these  objections,  however,  as  they  stand,  we 
find  upon  closer  analysis  that  the>  resolv  themselve  for  the 
most  part  into  the  following: 

1.  Bad  roads. 

2.  Long  hours  for  children  to  be  absent  from  home. 

3.  Local  pride  and  fear  of  loss  of  prestige  through  removal 
of  school. 

4.  Dislike  of  trying  something  new. 

5.  Increast  expenditure. 

It  is  significant  to  note  that  no  objection  is  raised  to  the 
educational  efficiency  of  the  consolidated  school.  There  seems 
t«  be  an  almost  universal  agreement  that  it  is  a  better  agency 
for  the  education  of  children.  This  at  the  outset  is  a  great  ar- 
gument in  its  favor.  All  the  objections  urged  against  it  have 
reference  to  physical  or  economic  considerations  or  to  the  inertia 
of  human  nature. 


12  THE  STATE  TEACHERS  COLLEGE, 

Among  the  most  serious  obstacles,  however,  in  the  way  of 
effecting  the  consolidation  of  rural  schools  are  undoutedly  bad 
roads  and  difficulties  of  transporting  children  from  the  remoter 
parts  of  the  districts.  These  difficulties  will  be  somewhat  les- 
sened in  time  as  better  roads  and  better  conveyances  are  pro- 
vided. The  automob^e  may  yet  solve  the  transportation  problem 
for  many  communities.  "But  even  if  the  roads  are  sometimes 
muddy,"  as  an  enthusiastic  Southern  state  superintendent  face- 
tiously remarks,  "which  can  stand  it  better,  the  child  or  the 
mule?"  Moreover,  muddy  roads  are  not  usually  a  serious  handi- 
cap in  Colorado.  If  children  can  be  successfully  conveyd  to 
consolidated  schools  under  such  a  wide  variety  of  conditions  as 
regards  climate  and  roads  as  is  to  be  found  between  the  Cana- 
dian Provinces  on  the  north  and  the  Gulf  of  Mexico  on  the  south, 
there  should  be  no  serious  question  about  transportation  in  the 
more  favorably  situated  portions  of  Colorado. 

The  additional  time  children  have  to  be  away  from  home 
under  the  consolidated  school  system  cannot  be  considerd  a 
very  serious  consideration.  We  are  learning  in  our  city  schools 
that  half-day  sessions,  at  least  for  the  younger  children,  are 
almost  as  valuable  as  whole-day  sessions,  and  it  would  seem  that 
•a  slightly  shorter  day  in  a  well-organized  school  ought  to  be  of 
greater  benefit  than  longer  hours  in  an  inferior  school.  As  many 
consolidated  schools  make  provision  that  a  child  that  is  taken 
ill  shall  be  conveyed  home  at  any  time  during  the  day  when  it 
may  be  necessary,  any  anxiety  of  the  parents  on  this  account 
is  obviated. 

Perhaps  the  greatest  difficulties  in  the  way  of  effecting  con- 
solidation arise  from  local  pride  and  prejudis  and  from  the  dis- 
liKe  of  changing  existing  arrangements.  Once  a  school  is  estab- 
lisht,  or  even  projected,  it  is  very  difficult  to  get  the  patrons  to 
give  up  the  plan  and  combine  with  some  other  district.  We  are 
all  more  or  less  creatures  of  habit  and  do  not  take  kindly  to 
new  ways  of  doing  things. 

"It  throws  light  on  a  situation  of  this  sort  to  reverse  con- 
ditions. Suppose  that  consolidation  had  been  the  plan  up  to 
date,  and  that  good  graded  schools  doing  high  school  work  were 


GREELEY,  COLORADO.  13 

establisht  in  the  country  everywhere,  to  which  children  were 
transported  regularly  and  landed  warm  and  dry  every  day,  re- 
quiring six  to  eight  wagons  for  each  school. 

"Suppose  then  the  proposition  should  come  up  to  dissolve 
these  schools;  to  build  eight  houses  instead  of  one  or  two;  to 
hire  eight  teachers  instead  of  three  or  four;  that  each  teacher 
should  try  to  teach  everything;  that  the  children,  even  little 
girls,  should  walk  thru  mud  and  slush  and  in  zero  weather  even 
as  far  as  two  miles  or  go  without  education;  that  under  the  new 
system  all  high  school  work  should  be  abandond.  What  then 
would  be  thought  of  the  present  system  if  it  came  up  as  a  new 
proposition  for  the  consideration  of  sensible  men? 

"The  arguments  for  such  a  change  could  not  be  many.  It 
might  sound  well  to  advocate  the  putting  of  these  horses  and 
drivers  to  useful  work,  letting  the  children  walk,  but  to  build 
eight  houses  instead  of  one  and  to  hire  eight  teachers  instead 
of  three  or  four,  all  that  a  half  dozen  drivers  and  teams  may 
earn  something  in  other  ways,  would  not  seem  economy.  The 
schools  would  certainly  suffer  as  would  the  helth  of  the  little 
children.  Let  him  who  has  a  lively  imagination  tell  us  what 
the  mothers  would  say  whose  children  had  always  been  trans- 
ported warm  and  dry,  when  it  should  be  seriously  proposed  that 
hereafter  the  little  ones  should  wade  while  horses  and  mules 
spoiling  for  exercise  stand  in  the  barns  and  kick  the  boards  off 
for  sheer  amusement  or  lack  of  exercise  "  * 

As  to  which  would  seem  the  saner  of  these  two  propositions, 
no  one  need  hesitate  for  a  moment.  But  we  have  to  recognize 
the  fact  that  the  small  ungraded  school  usually  occupies  a  po- 
sition of  advantage  in  any  community  by  virtue  of  the  fact  that 
it  was  organized  first.  The  people  get  to  feel  that  this  is  the 
natural  way  to  educate  their  children.  Consolidation  consequent- 
ly has  to  work  against  the  inertia  of  human  nature,  and  it  needs 
strong,  enthusiastic  supporters  as  well  as  the  backing  of  an  en- 
lightened state  educational  policy  to  overcome  this  handicap. 

That  consolidated  schools  as  such  are  more  expensiv  than 
small  district  schools  does  not  appear  to  be  a  fact.     The  con- 

*  E.  Davenport,  in  University  of  Illinois  Bulletin. 


14  THE  STATE  TEACHERS  COLLEGE, 

sensus  of  opinion  seems  to  be  that  where  the  conditions  are 
reasonably  favorable  to  the  plan,  a  consolidated  school  of  at 
least  equal  grade  of  efficiency  can  be  maintaind  without  addi- 
tional cost,  and  in  many  cases  at  less  expense.  It  is  undoutedly 
true,  however,  that  the  great  purpose  of  consolidation  is  to  secure 
better  rather  than  cheaper  schools.  The  better  class  of  schools 
usually  cost  more  but  it  is  because  they  furnish  a  type  of  educa- 
tion which  the  small  rural  school  cannot  supply.  When  we 
measure  the  value  of  such  education  to  the  young  people  of  our 
country  there  can  be  no  doubt  that  it  is  worth  any  increast  ex- 
penditure it  may  require. 


GREELEY,  COLORADO.  15 

ADVANTAGES  OF  CONSOLIDATION 

No  questions  were  askt  in  the  letter  sent  to  the  state  super- 
intendents in  regard  to  the  advantage  of  consolidation,  as  the 
purpose  of  the  inquiry  was  rather  to  determin  the  growth  of  the 
movement  and  to  discover  what  conditions  were  tending  to  pro- 
mote or  impede  its  progress.  It  may,  however,  be  desirable  in 
this  connection  to  say  something  about  the  merits  of  the  con- 
solidated school  as  gleand  from  incidental  remarks  in  the  cor- 
respondence and  from  the  literature  of  the  subject.  Among  the 
chief  advantages  claimd  for  consolidation  are  the  following: 

1.  Better  grading,  and  consequently  fewer  classes  for  each 
teacher  with  more  time  for  each  recitation.  This  is  most  im- 
portant. So  long  as  the  rural  teacher  has  thirty  classes  or  more 
a  day  in  all  subjects  and  all  grades  there  can  be  no  real  educa- 
tional work. 

2.  A  higher  per  cent  of  attendance. 

3.  Less  tardiness. 

4.  The  retention  in  tne  school  until  the  completion  of  the 
course  of  a  larger  number  of  children. 

5.  A  more  comfortable  schoolhouse  and  more  ample 
grounds. 

6.  Better  equipment. 

7.  Better  traind  teachers. 

8.  More  careful  supervision  of  the  teaching. 

9.  Less  danger  of  evil  associations  on  the  way  to  and  from 
school.  Occasional  complaints  are  made  about  the  lack  of  prop- 
er supervision  on  the  part  of  drivers  under  the  consolidated  plan 
hut  this  can  be  remedied  by  a  more  careful  selection. 

10.  Better  social  spirit  in  the  school  owing  to  the  larger 
number  of  children  in  the  classes. 

11.  Possibility  of  a  larger  usefulness  of  school  buildings  as 
a  center  for  the  social  activities  of  the  community. 

12.  Opportunity  for  a  broader  curriculum,  including  the  in- 
troduction of  elementary  agriculture  and  the  manual  and  house- 
hold arts. 

13.  Provision  for  suitable  high  school  education  within  the 
reach  of  the  children's  homes. 


10 


THE  STATE  TEACHERS  COLLEGE, 


Tne  last  three  points  are  especially  worthy  of  amplification 
as  indicativ  of  the  newer  spirit  of  rural  education.  The  con- 
solidated school  is  capable  of  becoming  the  rallying  center  of 
the  social  life  of  the  community.  There  is  a  well-markt  and 
stedily  growing  movement  in  our  cities  in  the  direction  of 
greater  usefulness  for  our  school  bildings.  They  are  being 
utilized  for  entertainments,  lectures,  meeting  places  for  clubs, 
and  various  social  functions.  It  is  still  more  important  that 
rural  districts  utilize  their  school  bildings  in  this  way.  The 
erection  of  a  commodious  school  house  makes  this  possible.  By 
such  means  the  social  impulses  of  young  people,  which  are  apt 
to  find  expression  in  less  desirable  ways,  may  be  diverted  into 
better  channels. 

A  still  more  direct  result  of  consolidation  is  the  enrichment 
of  the  work  of  the  school  thru  the  broadening  of  the  curriculum 
and  the  stimulus  of  a  larger  social  life  for  the  children.  One 
of  the  most  characteristic  features  of  the  modern  city  school  is 
the  enlargement  of  the  curriculum.  For  the  old-fashiond  course 
of  study,  consisting  largely  of  the  three  R's,  there  has  been 
substituted  a  more  nutritious  diet,  including  such  subjects  as 
literature,  history,  nature-study,  art,  music,  etc.  So  long,  how- 
ever, as  the  ungraded  school  compels  the  teacher  to  fritter  away 
her  time  in  hearing  daily  a  score  or  more  of  classes  with  a  very 
few  pupils  in  each,  we  must  be  content  with  a  very  meager 
pabulum  for  country  children.  The  better  grading  of  the  con- 
solidated school  permits  fewer  classes,  and  the  introduction  of 
additional  subjects  as  well  as  the  more  adequate  treatment  of 
what  is  taught.  In  the  larger  schools,  at  least,  provision  can  be 
made  for  the  introduction  of  vocational  subjects,  such  as  some 
lorm  of  handicraft,  domestic  science,  and  elementary  agricul- 
ture. The  school  no  longer  maintains  its  monastic  seclusion 
from  the  life  of  the  community  but  becomes  the  organ  for  the 
expression  and  direction  of  the  industrial  and  social  activities 
of  the  neighborhood. 

Another  important  advantage  of  consolidation  is  the  longer 
time  the  children  are  kept  in  school  both  for  grade  and  high 
school  work.  Biologists  tell  us  that  human  development  has 
been  renderd  possible  by  the  lengthening  of  the  period  of  child- 


GREELEY,  COLORADO.  17 

hood,  and  we  may  safely  take  the  number  of  years  the  children 
attend  school  as  an  index  of  the  civilization  of  a  people.  We 
are  learning  to  realize  that  it  is  an  inalianable  right  of  a  child 
to  be  educated  not  merely  until  he  is  14,  but  until  he  is  17  or  18 
at  least,  and  that  this  education  shall  include  for  all  classes  some 
preparation  for  the  practical  activities  of  life.  That  an  educa- 
tion of  at  least  the  present  high  school  rank  but  much  better 
suited  to  the  needs  of  various  classes  of  children  shall  be 
placed  within  the  reach  of  every  growing  child  upon  as  nearly 
as  possible  equally  favorably  terms  is  the  great  educational 
proclamation  of  the  twentieth  century.  From  such  an  educa- 
tion no  child  shall  be  debard  by  accident  of  birth,  by  the  fact, 
for  example,  that  his  lot  may  be  cast  in  a  remote  country  dis- 
trict. 

Now  statistics  support  the  verdict  of  common  observation 
that  the  little  country  school  house  has  little  attraction  for  the 
older  boys  and  girls.  Hence  their  attendance  is  irregular  and 
upon  one  pretext  or  another  they  frequently  drop  out  of  school 
even  before  the  completion  of  the  elementary  school  course. 
For  secondary  education  the  district  school  can  usually  make 
no  provision.  Hence  it  fails  to  perform  one  of  the  most  import- 
ant functions  of  a  public  school. 

The  consolidated  school  on  the  other  hand  has  been  found 
to  secure  a  much  better  attendance  during  the  elementary 
school  period  and  has  been  able  to  make  provision  for  high 
school  education  for  country  children  without  taking  them  away 
from  their  homes.  This  is  a  most  important  matter.  The  dif- 
ferent states  of  the  Union  are  trying  various  ways  to  bring  a 
high  school  education  within  the  reach  of  the  children  of  rural 
districts,  but  it  is  doubtful  whether  even  free  tuition  in  neigh- 
boring city  high  schools  secures  the  desired  end.  In  the  first 
place  there  are  indications  that  the  children  do  not  avail  them- 
selvs  in  sufficiently  large  numbers  of  the  opportunity,  and,  even 
if  they  did,  the  city  high  school  is  frequently  not  the  best  type 
of  school  for  the  country  child  to  attend.  In  certain  townships 
of  Ohio  with  free  tuition  in  city  high  schools  only  2.2  per  cent  of 
the  country  children  completing  the  grades  were  enrold  in  the 
high  schools,  while  in  otherwise  similarly  situated  townships  12 


18  THE  STATE  TEACHERS  COLLEGE, 

per  cent  of  such  children  were  attending  tht  consolidated  high 
school.  *  The  last  word  on  the  subject  of  providing  high  school 
education  for  country  children  has  probably  not  yet  been  said, 
but  the  consolidated  rural  high  school  offers  o*ne  of  the  most 
hopeful  solutions  of  the  problem. 


!U.  S.  Department  of  Agriculture     Bulletin     on     Consolidated 
Rural  Schools. 


GREELEY,  COLORADO.  '         L9 

MEANS    FOUND    EFFECTIV    IN     PROMOTING    LEGISLATION 

This  topic  opens  up  the  most  interesting  phase  of  t.ne  sub- 
ject. That  consolidation  in  many  parts  of  the  country  at  least 
is  practicable  and  desirable  has  been  abundantly  demonstrated. 
The  vital  issue  now  is  how  to  bring  it  about.  Thru  many  years 
of  undisturbed  possession  of  the  field  of  rural  education  the  dis- 
trict school  has  become  thoroly  establisht  in  its  position.  It 
has  acquired  certain  vested  rights  in  bildings  and  equipment; 
thru  force  of  custom  it  has  aroused  strong  prepossessions  in  its 
favor  in  the  minds  of  the  people.  However  defectiv  the  system 
may  be.  it  cannot  redily  be  changed  without  some  vigorous  pol- 
icy being  adopted  in  its  favor.  The  following  statements  will 
show  what  some  of  our  progessiv  states  are  doing  in  this  con- 
nection: 

Alabama. — Our  county  board  of  education  have  entire  charge 
of  such  matters  as  well  as  all  other  details  governing  the  rural 
schools. 

Arkansas.— The  district  is  the  administrativ  unit  for  school 
purposes  in  our  State  but  I  think  the  county  system  is  the  bet- 
ter plan. 

Georgia. — The  county  unit  system  of  schools. 

Idaho. — The  most  effectiv  means  in  securing  consolidation 
have  been  mass  meetings  of  citizens,  conducted  by  some  of  the 
leading  educators  of  the  State.  At  such  meetings  the  advan- 
tages and  disadvantages  of  consolidation  are  freely  discust  and 
patrons  are  made  familiar  with  the  possobilities  of  the  consoli- 
dated school. 

Indiana. — The  only  incentiv  we  have  in  legislativ  form  is 
a  provision  that  when  attendance  for  a  year  has  been  twelv 
pupils  or  fewer,  the  school  must  be  abandoned  and  transporta- 
tion furnisht  to  all  pupils  who  live  more  than  a  mile  from  the 
school  to  which  they  will  thereafter  be  attacht.  In  this  State 
the  township  is  the  administrativ  unit  for  school  purposes  in 
rural  communities.  From  what  I  know  of  the  management  of 
schools  in  states  having  the  district  system  as  compared  with 


20  THE  STATE  TEACHERS  COLLEGE, 

the  township  system  I  am  of  the  opinion  that  the  township  sys- 
tem is  very  superior  in  results  attaind. 

Kansas. — The  progress  of  consolidation  is  slow  compared 
with  its  merits.  The  county  system  of  school  organization  would 
give  it  a  greater  impetus  than  any  other  change. 

Louisiana. — Under  our  law  the  location  of  school  houses  is 
determind  by  the  parish  school  board.*  This  body  has  authority 
to  abandon  schools  and  to  open  new  ones  at  will. 

Maryland. — The  county  is  the  unit  of  administration  in  this 
State.  We  believ  the  county  is  the  best  unit,  under  the  condi- 
tions here.  This  plan  is  especially  advantageous  to  the  rural 
districts  since  the  entire  county  is  made  the  basis  for  the  col- 
lection of  local  school  taxes  and  also  for  the  distribution  of  the 
same.  A  smaller  unit  would  give  us  very  good  schools  in  the 
welthy  districts  of  the  counties  and  very  poor  schools  in  the 
poorer  districts. 

Minnesota. — Sufficient  state  subsidy  to  start  and  to  main- 
tain schools  with  a  fixt  minimum  area  and  valuation  for  such 
districts.  The  last  legislature  past  an  act  making  liberal  pro- 
vision in  tnis  respect.  Three  classes  of  schools  are  donned — 
those  of  four  departments  or  more,  those  of  three  departments 
and  those  of  two  departments.  The  initial  aid  which  the  state 
has  provided  for  schools  of  the  respectiv  classes  are  in  amounts 
of  $1,500,  $1,000  and  $750.  Aid  is  also  granted  by  the  state  for 
new  bildings,  equal  to  25  per  cent  of  the  cost,  provided  the  sum 
to  be  paid  does  not  exceed  $1,500.  The  expe  ience  in  IVi  nnesota 
tends  to  prove  that  consolidation  must  be  finanst  and  the  move- 
ment acknowledge  by  the  state,  otherwise  the  communities  are 
not  willing  to  give  up  their  small  school  units  and  to  incur  the 
xpense  incident  to  the  change. 

New  Jersey. — Our  State  encourages  consolidation  by  direct 
appropriation.  The  sum  of  $200  may  unler  certain  conditions 
be  apportiond  to  the  consolidated  district. 

Oklahoma. — The   Legislature   now   in    session   has     a     bill* 


:Similar  to  county  boards  elsewhere. 


GREELEY,  COLORADO.  21 

pending  giving  state  relief  to  consolidated  schools.  Th^  House 
made  an  appropriation  last  evening  of  more  than  two  million 
dollars  for  this  purpose.  If  this  bill  should  be  ratified  by  the 
Senate  and  approved  by  the  Governor  consolidated  schools  will 
be  the  rule  in  this  State,  not  the  exception.  In  this  State  we 
have  the  unit  in  school  matters  in  the  small  school  districts. 
If  I  had  my  way,  I  would  make  the  county  the  unit  with  one 
Board  of  Education,  one  member  selected  from  each  township 
and  the  County  Superintendent  as  ex  officio  Chairman. 

Rhode  Island. — The  unit  of  administration  for  school  pur- 
poses in  Rhode  Island  is  the  town  or  city.  In  my  opinion  the 
town  system  is  far  better  for  the  administration  of  rural  schools 
than  the  district  system.  In  truth,  in  New  England,  if  the  dis- 
trict system  had  continued,  many  children  would  be  out  of 
school  privileges  on  account  of  the  decrease  of  population  in 
some  sections.  Even  a  greater  centralization  may  be  necessary 
to  insure  a  reasonable  equality  of  education.  I  see  little  hope 
for  the  schools  in  some  sections  unless  the  state  comes  to  their 
relief  both  in  support  and  direction. 

South  Carolina. — State  aid  is  granted  to  new  bildings  and 
to  high  schools. 

South  Dakota. — As  the  administrativ  unit  for  school  pur- 
poses in  this  State,  we  have  the  small  school  districts.  At  the 
past  legislativ  session  a  school  code**  was  introduced  which 
made  the  county  the  administrativ  unit.  We  are  strongly  in 
favor  of  this  both  from  the  standpoint  of  economy  and  of  effi- 
ciency. 

Tennessee. — Our  State  has  a  law  requiring  that  no  school 
shall  exist  with  fewer  than  a  certain  minimum  number  of  pupils, 
provided  the  patrons  servd  can  reach  another  school.  Another 
law  providing  for  a  county  system  of  education  insted  of  a  dis- 
trict system  has  promoted  consolidation  very  largely.     Since  the 


*This  bill  did  not  become  a  law.  The  legislature,  however, 
cieated  a  fund  to  assist  in  defraying  the  cost  of  consolidated 
school  buildings. 

**This  very  comprehensiv  measure  failed  to  pass. 


22  THE  STATE  TEACHERS  COLLEGE, 

county  has  become  the  unit,  many  of  the  small  schools  have 
been  united  into  one  strong  school. 

Texas. — Under  our  new  County  High  School  Law  the  county 
board  of  school  trustees  will  have  authority  to  consolidate  any 
school  districts  either  for  general  school  purposes  or  for  high 
school  purposes.  It  is  the  opinion  of  friends  of  this  measure 
that  it  will  revolutionize  the  rural  schools  of  this  State.  Liberal 
grants  are  made  to  these  schools  for  the  organization  of  depart- 
ments of  agriculture,  domestic  science  or  manual  training. 

Utah. — The  organization  of  county  school  districts  of  the 
first  class  is  effected  in  this  State  by  the  board  of  county  com- 
missioners under  the  provision  of  the  law. 

Vermont. — To  a-l  towns  expending  five  mills  or  more  of 
their  valuation  for  school  purposes  and  furnishing  transporta- 
tion, the  State  rebates  about  one-fifth  of  the  amount  paid  for 
transportation. 

Washington. — The  legislature  provides  a  bonus  of  approx- 
imately $170  for  each  district  consolidating  less  one.  We  have 
a  county  board  of  education  as  well  as  a  district  board.  Per- 
sonally, I  feel  that  the  graded  schools  of  every  county  should  be 
under  the  management  of  a  single  school  board. 

Wisconsin. — Special  state  aid  is  granted  to  state  graded 
elementary  schools.  State  graded  schools  of  two  departments 
receiv  $200  per  year  special  state  aid;  schools  of  three  depart- 
ments, $300.  A  newly  enacted  law  provides  for  the  consolidation 
ci  districts  by  boards  of  supervisors  and  makes  provision  for 
transportation  of  persons  of  school  age  living  more  than  two 
miles  from  school.  The  state  is  cald  upon  to  assist  in  the  pay- 
ment of  the  expenses  for  such  transportation.  Special  state  aid 
is  granted  to  schools  maintaining  a  department  of  manual 
training,  domestic  science,  or  agriculture.  This  may  amount 
to  $1050  for  all  three  departments  in  both  the  grades  and  high 
school. 

These  extracts  are  sufficient,  I  think,  to  indicate  that  we 
are  entering  upon  a  new  era  in  the  matter  of  the  consolidation 
and  the  development  of  our  rural  schools.    At  first  the  problem 


GREELEY,  COLORADO.  23 

was  to  secure  legislation  to  permit  districts  to  consolidate  their 
schools  and  to  pay  for  the  transportation  of  the  children.  A 
few  states  are  not  yet  beyond  this  stage.  In  most  cases,  how- 
ever, the  problem  is  now  to  secure  legislation  to  foster  consoli- 
dation in  various  ways,  to  raise  the  standard  of  education  in  the 
rural  schools,  and  particularly  to  introduce  the  teaching  of  sub- 
jects of  a  vocational  character,  such  as  agriculture,  domestic 
science  and  the  manual  arts. 

A  brief  survey  of  the  legislation  enacted  by  the  various  states 
to  promote  consolidation  discloses  the  fact  that  four  types  of  laws 
are  employd  for  this  purpose:  first,  laws  abolishing  schools  having 
fewer  than  a  certain  minimum  number  of  children  in  attendance; 
second,  laws  defraying  in  part  the  cost  of  the  transportation  of 
children  or  the  erection  of  new  bildings;  third,  laws  increasing 
the  area  of  the  administrativ  unit  for  school  purposes;  and, 
fourth,  laws  granting  special  state  aid  to  schools  coming  up  to 
a  prescribed  standard  of  efficiency  in  regard  to  grading,  curricu- 
lum, etc.  The  last  two  classes  of  laws  are  not  designd  solely, 
of  course,  to  promote  consolidation  but  they  are  a  very  great 
help  in  this  direction. 

The  first  type  mentiond  is  the  most  drastic  in  its  effects. 
Indiana  is  the  most  notisable  example  of  effectiv  legislation  of 
this  kind.  In  that  state  several  hundreds  of  small  schools  have 
been  legislated  out  of  existence.  A  number  of  other  states  have 
experimented  with  laws  of  this  kind,  or  at  least  have  made  efforts 
to  secure  their  adoption.  While  there  are  objections  to  such 
legislation,  a  state  is  no  dout  justified,  on  the  score  of  economy 
if  no  other,  in  refusing  to  grant  aid  to  schools  attended  by  a 
very  few  children  when  it  is  possible  to  transport  them  to  a 
neighboring  school.  Statistics  show  that  the  very  small  schools 
are  among  the  most  expensiv  schools  in  the  country,  the  cost 
per  capita  sometimes  equaling  that  of  college  education.  We 
not  unfrequently  hear  of  schools  of  three  or  four  children  for 
whose  education  the  salary  of  a  teacher  and  the  incidental  ex- 
penses of  a  school  must  be  paid.  It  would  be  an  interesting 
study  to  discover  how  much  expensiv  education  of  this  kind 
Colorado  is  paying  for  and  to  what  extent  it  is  unavoidable. 


24  THE  STATE  TEACHERS  COLLEGE, 

The  second  class  of  legislation  favoring  consolidation  by 
means  of  grants  of  money  to  defray  the  cost  of  transportation 
of  children  and  the  erection  of  bildings  is  certainly  a  legitimate 
method  of  accomplishing  the  purpose  in  view.  As  will  be  notist 
by  the  statements  given  above,  several  states  have  adopted  this 
plan  to  the  advantage  of  their  rural  schools. 

The  movement  in  favor  of  increasing  the  size  of  the  admin- 
istrate school  unit  is  apparently  growing  markedly  in  favor. 
As  has  alredy  been  pointed  out,  one  of  the  greatest  obstacles  in 
the  way  of  consolidation  is  found  in  the  fact  that  the  people 
belonging  to  a  small  school  district  are  apt  to  be  averse  to  giv- 
ing up  their  district  school.  There  is  a  lack  of  solidarity  of 
sentiment  among  the  residents  of  the  different  districts  on  educa- 
tional matters,  and  local  prejudices  stand  in  the  way  of  an 
effectiv  union.  Moreover,  it  may  not  be  desirable  to  have  the 
boundaries  of  a  consolidated  school  district  coincide  with  the 
boundaries  of  any  group  of  smaller  districts.  Could  in  any  way 
these  district  lines  be  obliterated  and  all  the  small  schools 
placed  in  charge  of  one  administrativ  body  the  process  of  con- 
solidation would  be  greatly  facilitated.  This  desideratum  is  ac- 
complish by  any  of  the  larger  administrativ  unit  schemes. 
There  are  several  of  these,  each  of  which  is  capable  of  numerous 
variations:  the  township  system  of  control,  so  common  in  New 
England  and  the  Middle  States;  the  county,  or  parish  as  in 
Louisiana,  an  administrativ  plan  for  school  affairs  that  is  found 
in  many  of  the  Southern  States  and  which  is  gaining  a  foothold 
in  the  West;  and  the  large  combined  school  district,  as  is  illus- 
trated in  Utah,  formd  by  placing  the  control  of  a  number  of 
smaller  districts  in  charge  of  one  administrativ  body  with 
powers  similar  to  the  boards  of  education  in  our  large  cities  for 
the  purpose  of  securing  more  adequate  supervision  and  other- 
wise effectiv  management  of  the  schools  of  the  united  territory. 
The  latter  scheme,  of  course,  does  not  necessarily  includ  all 
the  schools  of  a  county. 

It  is  not  the  purpose  of  this  bulletin  to  offer  any  exhaustiv 
discussion  of  the  administrativ  unit  problem,  but  in  the  opinion 
of  the  writer  there  is  no  doubt  but  that  we  need  some  modifica- 
tion of  our  present  plan  in  Colorado.     While  methods  that  are 


GREELEY,  COLORADO.  25 

used  successfully  in  one  part  of  the  country  cannot  always  be 
relied  upon  to  give  equal  satisfaction  in  another  part  owing  to 
differences  in  local  conditions— the  size  of  the  county,  for  exam- 
ple, in  this  case— there  is  no  reason  why  a  careful  study  of  what 
is  being  done  elsewhere  should  not  be  very  illuminating  to  us  in 
Colorado.  After  the  results  have  been  sifted  out,  perhaps  some 
combination  of  the  other  methods  would  be  found  best  for  us 
here.  Much  of  this  investigation  has  alredy  been  made  by  the 
Educational  Council  of  the  State  Teachers'  Association.  All  that 
remains  to  push  this  work  thru  to  completion,  to  see  that  the 
results  are  publisht  so  that  they  may  be  helpful  in  molding  pub- 
lic sentiment  in  the  right  direction,  and  to  endevor  to  secure  the 
the  legislation  that  is  necessary  to  bring  about  the  desired 
changes. 

The  fourth  plan  of  fostering  consolidation  is  one  of  the  new- 
est and  most  effectiv  movements  for  the  improvement  of  rural 
education.  This  consists  in  grants  of  special  state  aid  to  schools 
that  reach  certain  standard  in  regard  to  the  grading,  curricu- 
lum, etc.  This  is  now  sometimes  taking  the  form  of  grants  of 
money  for  the  inauguration  or  maintenance  of  departments  of 
agriculture,  domestic  science,  or  manual  training  for  work  of 
high  school  grade.  Minnesota,  Wisconsin,  and  Texas  ofer  good 
illustrations  of  this  policy. 

This  plan  is  doutless  destind  to  do  much  for  the  improve- 
ment or  our  rural  schools.  There  is  much  sound  logic  back  of 
the  effort.  Many  of  the  advance  movements  in  education  have 
needed  to  be  fosterd  at  first  in  some  special  way;  and  why 
should  this  not  be  true  of  improvements  in  our  rural  schools? 
V  e  are  apt  to  be  too  complacent  about  prevailing  conditions. 
There  is  no  good  reason  from  the  standpoint  of  educational 
efficiency  at  least  why  our  system  of  pro  rating  all  the  state 
education  funds  among  the  children  is  necessarily  the  best.  A 
judicious  use  of  a  part  of  this  amount  to  encourage  laudable 
educational  undertakings  might  secure  much  more  valuable  re- 
sults. 

In  concluding  this  discussion  I  feel  that  I  cannot  do  better 
than  to  quote  the  words  alredy  italicised  unde-  the  report  on 


26 


THE  STATE  TEACHERS  COLLEGE, 


this  topic  from  Minnesota,  "Consolidation  must  be  finanst  and 
tne  movement  acknowledgd  by  the  state,  otherwise  the  commun- 
ities are  not  willing  to  give  up  (at  least  to  the  extent  demanded 
for  the  best  interests  of  rural  education)  their  small  school  units 
and  to  incur  the  expense  incident  to  the  change." 


GREELEY,  COLORADO.  27 

CONSOLIDATION  OF  SCHOOLS  IN  COLORADO 

It  is  doutless  appropriate  that  something  should  be  said  in 
regard  to  the  status  of  consolidation  in  Colorado.  While  un- 
fortunately not  a  great  deal  has  been  accomplisht,  a  few  schools 
cf  this  type  are  in  successful  operation.  The  first  case  of  con- 
r.tlidation  known  to  the  writer  occurred  at  Fountain,  El  Paso 
County,  a  decade  or  more  ago.  This  school  is  still  being  conduct- 
ed on  this  plan  with  free  transportation  of  children  from  the 
outlying  districts.  More  recently  consolidated  schools  have  been 
establisht  in  the  Unity  District,  at  Vineland  and  at  Rye,  Pueblo 
County,  and  at  Loma,  Mesa  County.  In  the  latter  county  an- 
other proposition  for  consolidation  has  been  favorably  voed  up- 
on but  the  execution  of  the  plan  is  unfortunately  being  delayd 
pending  a  decision  of  the  courts  relativ  to  the  legality  of  the 
election.  In  these  two  counties  much  interest  in  the  movement 
has  been  developt  under  the  enthusiastic  leadership  of  the  coun- 
ty superintendents,  Miss  Nellie  Corkish  and  Mr.  C.  G.  Sargent. 
Otero  County  is  moving  in  the  same  direction  with  one  school 
offering  free  transportation  of  pupils  at  Manzanola.  In  this 
county  also,  the  County  Superintendent,  Mr.  S.  S.  Phillips,  is 
doing  effectiv  work. 

Many  parts  of  Colorado  offer  especially  good  opportunities 
lor  consolidation,  and  the  movement  should  receive  the  sympa- 
thetic and  harty  co-operation  of  all  who  have  at  hart  the  welfare 
of  our  rural  schools.  We  do  not  have  to  encounter  nearly  such 
serious  obstacles  in  the  way  of  extremes  of  climate  and  bad 
roads  as  are  to  be  found  in  a  number  of  states  where  consoli- 
dation has  made  greater  progress.  Consolidation  should  be 
pusht  with  vigor  in  the  counties  adapted  to  it  and  should  re- 
ceive generous  support  from  our  state  legislature.  Wi  need  a 
revival  of  interst  in  the  work  of  our  rural  schools.  It  will 
quicken  our  sympathies  to  keep  in  touch  with  what  is  being 
done  in  this  direction  by  our  more  progressiv  states.  Colorado, 
with  its  munificent  system  of  public  education  should  endevor 
to  keep  in  this  respect  as  in  others  in  the  vanguard  of  educa- 
tional progress. 


28  THE  STATE  TEACHERS  COLLEGE, 


NOTE  OF  BIBLIOGRAFY 

The  most  exhaustiv  treament  of  this  subject  which  has  re- 
cently come  to  the  attention  of  the  writer  is  a  pamflet  on  Con- 
solidated Rural  Schools  and  Organization  of  a  County  System, 
publisht  by  the  United  States  Department  of  Agriculture,  Office 
of  Experiment  Stations— Bulletin  232.  The  author  is  George  W. 
Knorr.  Many  of  the  state  education  departments  publish  bulle- 
tins on  the  subject,  copies  of  which  can  usually  be  secured  free 
of  cost  thru  the  curtesy  of  the  superintendents.  These  consti- 
tute a  mass  of  valuable  material  on  the  subject.  Those  interested 
might  write  to  the  departments  of  education  in  the  following 
states:  Massachusetts,  Indiana,  Wisconsin,  Minnesota,  Iowa, 
Kansas,  Nebraska,  Oklahoma,  Texas  and  Mississippi.  Numer- 
ous articles  on  the  subject  have  also  appeard  in  the  leading  edu- 
cational journals. 


THE  LI3RARY  OF  THE 

DEC  9-  1938 

UNIVERSITY  OF  ILLINOIS 


UNIVERSITY  OF  ILLINOIS-URBANA 


3  0112  111487226 


